Fragmented governance and local service delivery in Malawi

During a research trip to Malawi in 2012, a senior
government official commented that nearly two decades after the government had
renewed its commitment to democratic decentralisation, the working of local
government was something of a ‘black box’. Ahead of local council elections in
May 2014, this study helps government and donors to understand how
local government and service delivery work and to assess whether the return of
local councils is likely to improve their functioning.Well-known problems in Malawi’s health, education and water
sectors arise largely from institutional and governance problems. The study
focuses on the delivery of these services in Blantyre City and Dedza and Rumphi
Districts, where local government is characterised by dual administration,
unclear mandates and functional fragmentation. The competitive-clientelist
political settlement crafted by elites is the underlying cause of local
dysfunctions, for the settlement drives policy incoherence and undermines
collective action at all levels of government. In turn, these shape the
incentives, choices and behaviours of local officials and frontline providers
and hamper the collaboration and coordination needed to delivery public goods.
The return of local councillors in May 2014 is unlikely to improve governance
and services significantly, and may further entrench clientelist politics in
local administrations.Our analysis is deeply pessimistic in many ways.
Nevertheless, we suggest that it is possible to reform institutions to improve
local governance and services. Given the prevailing conditions, the challenge
is to identify the types of institutions that can support public goods
provision and, in the longer term, will nudge Malawians towards a more
developmental political settlement. In line with this approach, we provide both
principles of assistance and concrete suggestions for policy and programming
that can help improve the delivery of local services and administration.